municipal corporation of tirupati - sswm · giz-asem municipal corporation of tirupati

Municipal Corporation of Tirupati

Draft City Sanitation Plan

Executive Summary

August 2011

GIZ-ASEM Municipal Corporation of Tirupati

City Sanitation Plan for Tirupati - Draft Report – Executive Summary P a g e | 1

94%

0.40 52%

40%

6%

100% 1.00 100% 100% 100%

Individual ToiletAccess

Public Toilets per500 Floatingpopulation

Water Supplycoverage

Seweragecoverage

Solid WasteDoor-to-Door

collection

Sanitation service Levels in MCT

MCT NormSource: SLB report, IMaCS analysis

Background1

The City Sanitation Plan (CSP) for Tirupati2

provides an integrated action plan to achieve universal sanitation

access as envisioned in Government of India’s National Urban Sanitation Policy (NUSP). This CSP has been

prepared for the Municipal Corporation of Tirupati (MCT) by ICRA Management Consulting Services Limited

(IMaCS) on behalf of Gesellschaft für Internationale Zusammenarbeit (GIZ).

The CSP3 identifies key issues and actions along five ‘sanitation components’ namely, a) Water Supply, b)

Access to Toilets c) Wastewater management, d) Storm water drains and e) Solid Waste Management

(SWM). Apart from Technical Actions along these sanitation components, the CSP also identifies issues and

actions across four ‘support pillars’ i.e., a) Governance and Institutional Framework, b) Capacity

Development, c) Awareness Generation and d) Financial sustainability. The CSP follows constitution of a City

Task Force (CTF), consultations with MCT officials and CTF, analysis of baseline information including a primary

survey, spatial mapping and city reconnaissance. The CSP builds on past/on-going initiatives including City

Development Plan and Detailed Project Reports (DPRs) for Sewerage and SWM.

Context

Tirupati, located in Chittoor district of Andhra Pradesh is famous for the Lord Venkateshwara temple in

Tirumala. While Tirupati’s economy has been pre-dominantly pilgrim- based, its growth in recent years has

been driven by its emergence as education and trade hub of the Rayalseema region of Andhra Pradesh.

MCT4 spread over 16.59 sq. km had a population of 2.27

lakh during Census 2001, of which slum population (spread

in 42 slum areas) was 0.94 lakh. Population within MCT is

projected to grow to 3.92 lakh by 2021 and 6.80 lakh by

2041. Being a pilgrim centre, daily floating population

averages 55,000 and peaks to 100,000 during festivals and

needs to be factored in provision of pilgrim related

sanitation services (water kiosks, public toilets etc.) and

infrastructure provisioning for water supply, waste-water

management and SWM.

The Tirupati Urban Agglomeration (TUA) extends beyond MCT and had a population of 3.24 lakh (Census

2001). Spread over 70.67 sq.km, the TUA comprises of 1 town, 3 urban out-growths and 9 villages in addition

to MCT. Population in areas beyond MCT within TUA is actually growing faster than within MCT.

Sanitation service levels have not kept pace

with the growth of the city and fall below SLB

norms specified by the Ministry of Urban

Development Government of India (MoUD). A

Sanitation rating exercise of cities carried out

by MoUD in 2009-10 ranked Tirupati a low 117

among 423 cities with a score of 39.4 in 100,

highlighting the need to address sanitation

challenges in an integrated comprehensive

1 This document presents an executive summary of the Report on City Sanitation Plan (CSP) for Tirupati. Readers are requested to refer the

complete report for further details of observations and recommendations made herein. 2 The focus of the study is area under the jurisdiction of the Municipal Corporation of Tirupati (MCT).

3 Refer section 1.2 and 1.3 for Scope of Work and Approach respectively

4 The Government of Andhra Pradesh (GoAP) issued a Government Order in 2008 to upgrade Tirupati as a municipal corporation and to

bring the whole of TUA under MCT jurisdiction. The municipal council of erstwhile Tirupati Municipality was dissolved to pave the way for this extension. However, the proposal to extend city limits is yet to be implemented.



manner. Under this context, the initiative to formulate a CSP for MCT is very timely.

The CSP considers two time horizons:

Planning Horizon (30 years 2012-2041): The Planning Horizon covers 30 years from 2012 to 2041 and

involves planning for an Intermediate Stage (2021 or 10 years) and an Ultimate Stage (2041 or 30 years).

Action Horizon (10 years 2012-21): The Action Horizon covers 10 years from 2012 to 2021. Actions are

prioritised along a) Short Term: 3 years b) Medium Term: 5 years and c) Long Term: 10 years.

The rationale and recommendations with respect to critical issues identified in the CSP are summarized below:

Priority Issues and Actions5

1. Inadequate provision of Public Toilets and Community toilets6 has led to prevalence of open defecation

in low-income pockets in the fringes and open urination in commercial areas respectively.

Rationale

Open Defecation (OD) is widely prevalent in select slum clusters within MCT. Although access to individual

toilets is reasonably high at 94%7, Open Defecation is visibly prevalent in 10 places adjoining slum pockets in

election wards 2, 3, 5, 10, 12, 13, 17, 18 and 29. About 4% of respondents in slum areas reported OD during

the primary survey conducted as part of the CSP exercise. Street reconnaissance and local interactions reveal

higher levels of OD prevalence in slums in peripheral areas. For e.g., OD prevalence is more than 40% in Lenin

nagar-Parvathipuram and Uppangi harijanawada slum clusters in election ward 17. While the CSP estimates a

demand of 62 Community Toilets in slum areas to cater to requirements in 2016, there are no functional

Community Toilets at present, in these areas. Low Cost Sanitation toilets provided under slum development

programs in the past are now defunct and non-operational.

Open urination is rampant in commercial areas with high floating population. Coverage of Public Toilets is

inadequate at 0.4 seats per 500 floating population as against a desired level of 1 for every 500 of floating

population. Against an estimated demand of 53 Public Toilets, there are only 23 Public Toilets at present and

even these are not maintained well. 88% of users rated maintenance of public toilets as poor or very poor.

5 Only the priority issues and actions are covered in the executive summary. For a detailed analysis, refer chapters 3 to 7 of the CSP for

issues and recommendations on sanitation components and chapters 8-11 for coverage of cross-cutting aspects. 6 Issues relating to Access to Toilets and details of Baseline status are discussed in section 3.1 of the CSP

7 Proposal for ISIP. Service Level Benchmarking (SLB). March 2011.

Areas requiring Public Toilets on priority Areas requiring Community Toilets on priority Areas with open defecation

Shaded areas show slums

of different density



Visits to toilet locations indicate that critical design considerations such as gender sensitivity, 24x7 access and

water availability are often not addressed. For instance, Pay-and-use toilets built by MCT do not have urinals.

Public urinals (at Gandhi circle, Tilak road, Tatiah nagar, P K street, TP Area, Koneru, Tirumala byepass,

Leelamahal road , KT road, Annamaiah junction etc.) have become pollution hot spots due to lack of water

supply and maintenance. Accountability for toilet maintenance within MCT is diffused with Toilet monitoring

being handled by the Health Department while repairs and maintenance are done by the Engineering

department. As a result, open urination is rampant particularly in commercial areas in election wards 14-17.

Critically vulnerable locations including Koneru, TP area, Sreenivasam group theatres, Railway station area, and

behind both the private and government Bus Stands. MCT is in discussions with Sulabh International to

develop Public Toilets at 7 locations as an initial measure.

Recommendations8

1. Building on the findings of the CSP, MCT should develop and implement a City-wide Toilet Development

and Rehabilitation Plan9 to eliminate open defecation and open urination within three years. This Plan

should be developed at a DPR level of detail to identify specific locations, configuration and sizing for

provision of Public Toilets and Community Toilets10

after a detailed city-wide demand assessment. The

DPR should also estimate capital and O&M costs for implementing this plan. A Terms of Reference for this

DPR is provided in the CSP report. This Planning effort should be followed with time-bound

Implementation with possible prioritisation as suggested below:

a. Phasing out open urinals and replacing them with aesthetically appealing functional Public Toilets.

b. Provision of Community Toilets in slums and ward locations with high OD prevalence.

c. Provision of Public Toilets in commercial areas with high floating population.

d. Provision of Public Toilets in other areas to achieve a target standard (say access within every 500 m).

2. As an immediate measure, MCT should implement an Inspection and Monitoring protocol11

to ensure

timely maintenance and consistent service delivery in existing toilets. Sanitation Inspectors should be

designated responsibility to inspect/report performance of Public and Community Toilets at a specified

frequency say, weekly, to start with. The Inspection frequency could be reduced progressively (say

monthly) as maintenance processes are streamlined and existing toilets are made fully operational. An

illustrative checklist of issues to be checked as part of the Inspection protocol is detailed in the CSP report.

3. MCT should earmark a dedicated budget for toilet development and maintenance expenditure. To

minimise financial burden, MCT should consider adopt appropriate outsourcing models12

and encourage

adoption of public and community toilets through Corporate Social Responsibility (CSR). MCT should

actively mobilise revenues through pay-per-use and advertising to achieve full cost recovery for Public

Toilets. Development of Community toilets may require subsidization and O&M costs could be managed

through community-led maintenance and monthly user fees. MCT should also mobilise support from

agencies like Tirumala Tirupati Devasthanam and local entrepreneurs through Corporate Social

Responsibility (CSR) initiatives to improve sustainability of Public Toilet maintenance and operations.

4. MCT should initiate awareness campaigns to facilitate awareness, usage and ownership of shared

community toilet facilities among slums, traders and schools. The focus of awareness campaign for users

in slums should be on a) Health Hazards, b) Use of toilet facilities and c) Good sanitation practices

including washing hands, keeping toilets clean and d) Community role in monitoring. A campaign with

support of traders could help spread awareness to limit open urination in commercial areas. A campaign

targeted at primary schools students backed by provision of good sanitation facilities at schools should

8 Refer section 3.5 of the CSP for detailing of these and other recommendations on Toilet Access provision

9 Detailed Terms of Reference for both the Community Toilet component and Public Toilet Component are provided in section 3.5 Box 3.2

10 The CSP distinguishes shared toilets into two types: Public Toilets that are required to meet the needs of floating population in the city

and Community Toilets that are required to tackle open defecation and lack of individual toilet access in slum areas. 11

A format with indicators to be monitored is provided in the CSP (section 3.5 Table 3.6) 12

Box 3.1 in chapter 3 of the CSP discusses lessons and insights from various models in shared toilet provision



Sewerage network coverage

also be initiated on priority. Further, MCT (along with other agencies) should consider developing

standardised visual themes (logos, painting and signage) for Public Toilets for effective branding.

5. MCT should in consultation with the Government of Andhra Pradesh (GoAP) implement bye-laws to levy

fines for open defecation/urination and incorporate toilet specifications as part of Building regulations.

About 62 Community toilets and 53 Public toilets are needed within the next three years. Capital cost13

is estimated at about Rs. 12.6 crore during 2011-16 while O&M cost is estimated at Rs. 2 crore annually.

2. While MCT’s sewerage system14

covers most areas of the city, service delivery is below par on

wastewater collection efficiency and treatment performance.

Rationale

Apart from parts of election ward 17 and 36 and few areas in select wards, where rider lines for connecting to

households have not been provided, Tirupati has a fairly extensive sewerage network that covers nearly 79%

of the roads. However, only 40% of properties in the city are actually connected with a third of the wards

having connections equivalent to less than 30% of properties. Also nearly 50% of connections cover black

water only while grey water gets discharged in storm drains and in open. Reported STP capacity at 25 MLD is

inadequate vis-à-vis the waste water generation (estimated at 37 MLD). While 26% of primary survey

respondents reported problems of choking sewerage network suggesting network under-utilisation, discharge

of untreated wastewater at STP inlet is observed and suggests a pumping capacity bottleneck even with

existing flows. There is no secondary treatment at the STP. Though average outlet BOD (75 mg/l) conforms to

pollution control norm of 100 mg/l for discharge for irrigation, it is higher than pollution norm of 30 mg/l

allowed for discharge in water sources.

Recommendations

1. In view of the inadequate information on waste-water flows and other sanitation indicators at a

household level, MCT should conduct a comprehensive household sanitation survey as recommended in

the Information Systems Improvement Plan (prepared under the SLB study) on priority. A list of sanitation

parameters on which information is to be captured is provided in the CSP report.

13

Based on a normative estimate computed given that 20% of slum households are in need of Community Toilets (@ one Toilet seat for 15

Slum Households) and one Public Toilet for every 200 Floating Population. Refer Table 3.4. of the CSP. 14

Issues and Recommendations relating to Wastewater management are covered in chapter 5 of the report which analyses baseline issues pertaining to issues 2 and 3 of the Executive Summary

Under

implementation

Uncovered

areas

Covered with

sewerage



2. MCT along with PHED should undertake technical improvements to the Sewerage system to improve

waste water collection efficiency and treatment performance. In view of limitations of the sewerage

system including pumping bottlenecks at STP, heavy peak load despite a high proportion of ‘black water

only connections’, network choking and poor discharge quality, MCT along with PHED should after

conducting a technical validation, implement the following actions:

a. Installation of Bulk meters at the STP to capture information on waste-water flows effectively.

b. Resize and replacing pumping equipment at the STP as required post validation of waste-water flows

c. Troubleshoot places in the sewerage network where choking complaints are reported frequently

d. Feasibility study and implementation of secondary treatment at STP to improve treatment efficiency.

3. MCT should initiate a sewerage connection drive to a) connect grey water outlets of existing ‘black water’ only sewerage connections and b) increase penetration of sewerage connections. Given that a sewerage

system is designed for black and grey water flows, MCT should conduct a one-time inspection of

properties with sewerage connections to identify and connect grey water outlets. To incentivise such

connections, MCT may consider providing such connections free. Further, MCT should continue with its

on-going connection drive to improve penetration of sewerage connections. As a priority, MCT could focus

on wards where the ratio of sewerage connections to properties is low and progressively cover all wards.

4. Given that there is already a request from a nearby industrial unit for re-use of treated waste-water from

its STP, MCT should pursue and implement this proposal on priority. Since the industrial unit has proposed

tertiary treatment by itself, MCT could potentially get a revenue stream from just the sale of treated water

that is being discharged into the open at present.

The capital cost15

for implementing the actions on waste-water management is estimated at Rs. 27

crore in short-medium term and Rs. 56 crore in long-term. O&M cost is estimated at Rs. 9 crore in 2011.

3. Regulation and oversight of Onsite sanitation16

and septage management is inadequate, leading to

wastewater dumping and potential risks of groundwater contamination.

Rationale

Since only 40% of properties within MCT are connected to the sewerage system (with several black-water only

connections), a significant amount of waste-water is let into septic tanks and soak pits and in several cases into

in open drains. MCT does not maintain an updated record of septic tanks in the city; the Health department

estimates that there are about 10,000 properties with access to soak pits under the ILCS scheme, several of

which are non-functional. 57% of the respondents from primary survey indicated that they had not cleaned up

the septic tank even once, suggesting limited adoption, awareness and enforcement of guidelines relating to

septic tank construction and maintenance. Only 12% of respondents indicated a clean-up frequency of septic

tank of less than 1 year. Desludging practices are archaic and managed by informal private service providers

with little attention to safety, health and environment aspects. There are 3 agencies engaged in the cleaning of

septic tanks, typically done through 6 KL tanker trucks. Septage collected is discharged in open spaces in

vicinity of MCT without treatment creating the risk of further groundwater contamination and health impacts.

Recommendations

1. Clarify and enforce bye-laws for monitoring and regulation17

of septage management and on-site

sanitation. A set of well-defined bye-laws and guidelines, accompanied by rules for on-site sanitation and

septage management should be adopted and enforced by MCT in consultation with and assistance from

15

Normative estimate based on norm arrived at for Class IC cities in report on Indian Urban Infrastructure and Services prepared by High Powered Expert Committee set up by MoUD released in March 2011. Refer Table 5.7 of CSP in Chapter 5. 16

Baseline issues pertaining to onsite sanitation detailed in chapter 5.1.2 of CSP 17

Areas that need to be covered under guidelines for onsite sanitation is discussed in section 5.5 under point 4. Annexure 16 and 17

discuss onsite sanitation option and a guidance note on septage management respectively



GoAP. Municipal byelaws should be amended to phase out septic tanks in areas served with sewerage

system and mandate households to connect to sewerage network.

2. Two areas namely, SV University and the eastern part of Ward 17 (which is currently not connected to the

sewerage network) are currently unserved. MCT should initiate a feasibility assessment and a cost

benefit analysis of options to address these unserved areas including a) decentralised / onsite treatment

systems such as DEWATS or b) connecting to existing sewerage network (with additional pumping

facilities) to implement a suitable waste-water management solution in these areas.

3. MCT should create facility to receive and treat septage from soak pits and septic tanks at the STP. In view

of the need to improve discharge treated water quality standards, MCT and PHED initiate a feasibility

study and implement such a facility. This will help avoid indiscriminate dumping of sewage in open places.

4. MCT should empanel service providers and ensure compliance to safety, health and environment

practices in septage management and onsite sanitation. This will help MCT to effectively enforce

compliance to onsite sanitation practices and effective waste-water capture and treatment in areas that

are not served or connected to the sewerage system.

5. MCT should establish a waste-water quality monitoring protocol, in coordination with APPCB and PHED,

covering waste-water quality sampling, testing and monitoring and information dissemination to ensure

compliance of water quality to CPCB and APPCB norms.

4. Storm water drain network faces severe abuse with ‘grey water flows’ and solid waste dumping.

Rationale

Even though Tirupati has a natural topography advantage (with a sloping towards the eastern part of the town

which minimizes water logging) and a reasonably good storm drain coverage (107% as per SLB study),

effectiveness is severely limited due to indiscriminate and widespread solid waste dumping and grey water

flows into this network. Nearly 50% of complaints received by MCT are on choking of storm drains with Solid

waste. Visual inspection reveals that even black-water is discharged into storm drains along low-income

pockets. In some stretches such as Kothapalli, storm drains are also used as open defecation spots. A number

of areas face water logging due to ineffective storm water drains and lack of water retention zones to capture

peak run-off. Encroachment of urban water bodies shown in revenue maps and rapid urbanization further

Storm drains are thus emerging as vulnerable pollution hotspots as combination of solid waste dumping,

sullage flows and poor maintenance threatens to create adverse health impacts and eye-sore. While MCT is in

the process of implementing a trunk drain network under JNNURM, branch networks are poorly designed with

narrow width, lack of appropriate lining, lack of appropriate integration into trunk drains and further

contributes to water stagnation and ineffective storm water handling. While addressing these issues would

primarily require implementation of recommendations under SWM and Waste-water management, other

recommendations relating to storm water management are listed below:

Recommendations

1. Implement a time-bound phased investment program to develop / rehabilitate secondary drains. In view

of the expected demand–supply gaps pointed earlier, MCT and PHED / Public Works Department should

prepare a DPR and implement a storm drain network including secondary and tertiary drains within MCT.

2. Clarify organisational accountability for drain management. A Designated Incharge for Storm Drain

management should be created specifically discharged with the responsibility of drain cleaning and

management. At the operating level, there should be field level conservancy staff with designated

accountability for in drain cleaning and management for specific trunk and secondary drains.

3. Conduct a feasibility study to explore scope for setting water retention zones within and in the vicinity of

MCT through restoration and creation of water bodies.



5. Service delivery in Water Supply18

within MCT falls significantly short of service level norms.

Rationale

Nearly 51% of respondents in the primary survey felt that water supplied by MCT is insufficient. Per capita

supply is less than 90 LPCD when the high floating population is factored, as against service level norm of 135

LPCD. Supply frequency is less than 1 hour per day and piped connections account for only 52% of properties.

While water demand is expected to increase to 116 MLD by 2041, supply from existing sources in MCT is only

44 MLD. With negligible metering (covering only 3.6% of connections) and no bulk metering in the network,

reported network losses cannot be validated. Though Residual chlorine and bacteriological parameters are

monitored daily, other physical and chemical indicators are inadequately monitored. There is no monitoring of

ground water status (except near waste dumpsite by APPCB). Power cost for operating power bore based

secondary network translates to nearly Rs. 9 per KL which is significantly higher relative to reported O&M cost

of Rs. 3.48 per kl for water supply. These issues in service delivery reflect in moderate Cost recovery and poor

Collection efficiency levels which are 68% and 22%19

respectively.

Recommendations

1. In order to improve baseline information on water flows and validate water consumption and losses, MCT

should install Bulk Meters at Intake points, Treatment Plants, Storage and Pumping points.

2. MCT should then, in coordination with PHED, initiate a NRW reduction study to assess system losses as a

measure to improve short term system performance. This should be followed by preparation of DPRs20

to

develop and rehabilitate the water supply network to comprehensively achieve SLB norms within MCT in a

time-bound manner. These preparatory efforts should factor the needs of the large floating population.

3. Along with these preparatory efforts, PHED should evaluate options to address water demand-supply gap

including evaluation of feasibility of bringing in additional water from Kandaleru reservoir envisaged by

PHED. This is critical to address water security concerns and groundwater depletion.

4. MCT should implement a Water Quality Monitoring Protocol covering both piped supply and ground

water. MCT in consultation with APPCB and PHED should implement a water quality sampling, monitoring

and information dissemination protocol to ensure compliance of water quality to IS: 10500 standards

covering both municipal supply and groundwater.

5. MCT should implement metering and volumetric tariffs for all commercial connections with immediate

effect. As an immediate measure, MCT could consider introducing user charge slabs for residential

connections based on size of property. This will enable MCT to remove the distortionary water pricing

prevalent, where slum households and high-income households served by a similar size connection pay the

same tariff, even though water consumption is likely to be significantly different. This will help MCT realise

better revenues while reducing burden on urban poor through lower tariffs. MCT should shift to 100%

metering of residential connections and to volumetric tariff once service levels improve.

6. MCT should in consultation with GoAP, formulate/enforce bye-laws on Tariffs, Connection policy and

Rainwater harvesting.

The capital cost21

for implementing above actions is estimated at Rs. 100 crore in the short-medium

term and another Rs. 170 crore in the long term. Recurring O&M cost is estimated at Rs. 8 crore in 2012.

18

Water supply baseline status discussed in detail in section 4.1 of the CSP 19

Figures from SLB study. IMaCS analysis indicates cost recovery and collection efficiency at 49% and 46% respectively for FY 10. 20

Detailed Terms of Reference for preparation of DPR is provided in section 4.5 under Boxes 4.2 and 4.3 21

Normative estimate based on norm arrived at for Class IC cities in report on Indian Urban Infrastructure and Services prepared by High Powered Expert Committee set up by MoUD released in March 2011.



6. Littering and waste dumping22

in open drains reflects the poor state of SWM in MCT. Door-to-collection

is negligible while processing / safe landfilling is non-existent.

Rationale

Waste generation within MCT, at 145 MT per day translates to 1750 grams per household. Waste collection

efficiency is only 80% while coverage of Door-to-door collection and Source segregation is only 6.5% and 8.6%

respectively. Waste is dumped at Ramapuram dumping site without processing and landfill. More than 50% of

complaints received on storm water drains pertain to dumping of waste in drains. Reconnaissance visits

confirms that most storm drains are choked and waste bins are overflowing indicating scope for improvement

in service delivery. Prevailing O&M cost at Rs.1788 per ton appears high relative to other cities, especially in

the context of poor service levels and lack of facilities for processing and landfill. MCT does not have user

charges, though it has initiated steps to incorporate user charges and fines. While the conservancy staff report

under the Health department, the Engineering department is responsible for procurement of vehicles and

tendering thus creating overlaps in responsibility. Sanitary staff is not exposed to modern waste management

practices including door-to-door collection, bin-free approaches, optimal routing, recovery and processing.

Recommendations

1. MCT should create a dedicated and adequately staffed SWM department with procurement, staffing and

service delivery responsibility to achieve compliance to MSW Rules 2000 on a Mission Mode. MCT should

induct an expert with experience in implementing modern SWM practices to lead this effort.

2. The gaps in the DPR under preparation should be addressed on priority. An independent assessment done

by GIZ has identified areas for improvement and this has to be incorporated for effective implementation.

3. MCT should implement door-to-door collection on priority through training of sanitary staff, mobilising

public participation and leveraging Self-Help Groups/ local NGO linkages. In case of implementation of an

integrated PPP model, this activity could be the responsibility of a Private operator.

4. MCT should consider use of PPP options in Solid Waste Management23

. Once the DPR is finalised, MCT

should explore feasibility for structuring and implementing a suitable PPP contract. The following PPP

options could be evaluated, a) Integrated SWM involving end-to-end contract where the private operator

covers door-to-door collection, segregation, transportation, processing and landfill with or without

sweeping component, b) Only Transportation, Processing and landfill and c) Only Processing and Landfill.

5. MCT should launch an awareness campaign with public participation to complement door-to-door

collection and source segregation initiatives. Initiatives like door-to-door collection and source segregation

involve significant mind-set change and therefore engaging public involvement and participation in the

initial stages through and intensive awareness campaign is critical to get public support.

6. MCT should in consultation with GoAP, incorporate bye-laws for formalising policy on the following :

a. Right to levy, collect and retain user charges. MCT should also be able to assign/transfer this right to a

service provider through a contractual relationship

b. Articulate citizens’ duties with respect to maintaining clean environment and to fulfil obligations in

implementing modern practices such as door-to-door collection and source segregation.

c. Right to impose fines in case of non-compliance of citizens in their duties regarding sanitation.

The capital cost24

for implementing the DPR is estimated at Rs. 39 crore, but does not indicate costs of

IEC. Recurring O&M cost (including IEC campaigns) is estimated at Rs. 8 crore.

22

Baseline status of SWM is detailed in section 7.1 23

Profiles of similar PPP projects are discussed in section 7.5 Table 7.10 24

Based on estimates provided in SWM DPR of MCT



7. While overlaps in roles and responsibilities for sanitation within MCT and among GoAP agencies tends

to create diffused accountability, inadequate staffing and exposure to modern sanitation practices within

MCT constrains ability to drive transformational changes needed.

Rationale

The Public Health and Engineering Department, Government of Andhra Pradesh (PHED) is responsible for

implementation of capital projects in water supply and sewerage. Since MCT is responsible for O&M only, it

often faces ownership and capacity constraints in managing O&M and service delivery effectively. Even within

MCT, responsibility for sanitation is diffused across multiple departments (as shown below). While SWM is

being handled by Public Health department, procurement of vehicles is handled by Engineering section.

Institutional Responsibility Matrix

Urban Services Planning Execution O&M Tariff fixation

and collection

Water Supply PHED PHED MCT MCT

Sewerage PHED PHED MCT MCT

Public and Community

Toilets Multiple agencies

MCT / TTD / Other agencies / Private contractors

MCT / TTD / Private contractors

MCT / Private contractors

SWM MCT MCT MCT Not levied

Storm Water Drainage PHED PHED MCT Not Applicable

22% of the sanctioned position are vacant, indicating constraints even with respect to planned manpower.

Officials are also constrained by inadequate exposure to modern practices in water supply, sanitation and solid

waste management as a result of which critical practices such as continuous water supply and metering in

water supply, door-to-door collection and source segregation in SWM etc. have not been adopted. Though

administration of MCT is overseen by the District Collectorate, absence of a formally Elected Municipal Council

sometimes constrains policy formulation and implementation. Effective implementation of Institutional

actions within MCT requires support and guidance from GoAP. Therefore recommendations on this issue are

being made at two levels, actions to be taken by GoAP and actions to be taken by MCT.

Recommendations

Actions by GoAP

1. GoAP should formulate and disseminate a state-level Sanitation Strategy. In line with the

recommendations of the NUSP, the Government of Andhra Pradesh to formulate a State Sanitation

Strategy in line with guidelines issued under the NUSP. The recommendations of this CSP (and other CSPs

under preparation in the state) may be factored during the formulation of the CSP to ensure synchrony.

2. GoAP should actively support ULBs in implementing local level policy framework through model bye-laws

and guidelines. Illustrative areas for formulation of such model guidelines are listed below:

Sl. No. Nature of Action Subject

1 Bye-laws Ground water management and Rainwater Harvesting

2 Bye-laws User charges Regulation, Fixation and Revision

3 Bye-laws Connection and Disconnection policy for water and sewerage connections

4 Bye-laws Citizen Obligations, Penalties for littering and waste dumping.

5 Bye-laws Onsite sanitation, decentralised treatment and septage management

6 Guidance Manual Public Toilets configuration, sizing and operation

7 Building Regulation Toilet Sizing and specifications as part of Building Code



3. GoAP should undertake an organisation assessment of MCT to identify the number and scale of officers

required and detailing of job descriptions and drafting / amendments to service rules as necessary. The

following actions may be considered as part of this organisational review and restructuring exercise.

a. MCT should eventually align all sanitation activities under a Water and Sanitation department to

provide dedicated accountability for all Water and Sanitation activities covering a) shared toilet

access, b) water supply, c) waste-water management, d) Solid Waste Management and e) Storm

drains and water bodies. The overall schematic of a possible organisation and roles for each sub-

department is detailed in the CSP.

b. The Revenue and Accounts functions that are currently handled separately should be integrated and

handled as a centralised Finance department

c. MCT has already computerised its complaint handling process and this should be strengthened

through creating linkages between a back-office organisation that tracks, captures and respond to

citizen complaints and operating staff under various departments to ensure that complaints are

resolved in time-bound manner.

Actions by MCT

4. As an immediate measure (till a detailed organisational plan is implemented on the lines recommended

above), MCT could create a dedicated SWM team carved out of the Health and Engineering departments

to address SWM in a focused manner. MCT could also specifically fix responsibility of sanitation officials

(for e.g., a designated set of toilets for monitoring, specific zones for storm drain management and SWM)

in order to improve accountability.

5. MCT should also create a Coordination committee25

to jointly coordinate infrastructure planning and

service delivery and to clarify responsibility for various aspects of water and sanitation. This committee

could be created under the chairmanship of Commissioner MCT and comprise PHED and MCT officials. The

scope and activities of this Coordination committee are detailed in the CSP.

6. GIZ has undertaken a Training Needs Assessment focused on Environment related aspects which provides

detailed recommendations on areas of training. Priority Training needs across sanitation components and

other cross-cutting areas are also detailed in the CSP. This should be implemented on priority.

7. In order to strengthen monitoring and oversight of sanitation activities, MCT should consider

implementing a three level monitoring and evaluation framework on the lines suggested below:

a. First level - Elected Municipal Council: It may be useful to form a sub-committee to focus on Water

and Sanitation within the Elected Municipal council with the mandate of reviewing and implementing

the CSP recommendations along with the CTF. This sub-committee could also oversee enforcement of

bye-laws and tariff fixation/revision. Till an elected council is in place, MCT could use the CTF as its

first level monitoring mechanism.

b. Second level - Public Participation: MCT should actively encourage creation of monitoring

committees at a ward / community level, formed from community representatives and Resident

Welfare Associations for local oversight of water and sanitation services. When Tirupati has an

elected Municipal Council, the ward committees in line with the statutory Community Participation

requirements could take over this role.

c. Third level – Independent Evaluation: The GoAP should carry out independent evaluation of service

delivery across sanitation components periodically focused on outcomes achieved and to capture

wider perceptions of users. The results of such independent evaluation (along with action taken by

MCT as a follow up) should be disseminated widely.

25

A detailed roadmap and set of actions to be undertaken by the Coordination Committee is detailed in section 8.3.2 point no. 2.



8. MCT’s financials are severely constrained to support capital investments; Cost recovery in sanitation

services does not even meet O&M costs and collection efficiency of even the low user charges is very low.

Rationale

Cost recovery26

in water supply and sewerage are at 69% of O&M costs while Collection efficiency is reported

at 22% and 21% in both water supply and sewerage respectively. There are no user charges levied for Solid

Waste Management yet, though recently MCT has initiated steps to implement the same. The O&M

expenditure for SWM, based on information provided to us by MCT translated to a cost of Rs. 1788 per ton

which appears high relative to other cities, especially given lack of processing and landfill facilities.

Recommendations

1. The summary of a 5 year capital investment program27

and phasing of the same is presented below. The

estimated cost required over the next five years is estimated to be Rs. 520 crore with priority investments

in Access to Toilets, Solid Waste Management and Information Systems Improvements.

Capital Investment estimate and possible phasing (Figures in Rs. Lakh)

Capital Investment (Rs. Lakh) Phasing of Investment

TOTAL Short Medium Long

Access to Public and Community Toilets 1,128 - 408 1,536

Water Supply 650 9,300 24,130 26,880

Waste water management 300 2,400 5,600 8,300

Storm Water Management 1,500 1,500 4,000 7,000

Solid Waste Management (As given in DPR) 137 3,970 - 4,107

ISIP, Project Development and Capacity Building 2,960 740 600 4,300

TOTAL 6,675 17,910 34,738 52,123

Source: IMaCS analysis

2. In view of its limited borrowing capacity, MCT will require significant grant support from schemes like

JNNURM and Rajiv Awas Yojana (RAY) to meet investment needs. Given the importance of sanitation,

GoAP should consider creating a dedicated funding as part of budgetary outlay for urban sector.

3. The estimated O&M costs for sanitation service delivery effectively translate to about Rs. 354 per month

per household and suggest that 100% O&M cost recovery is achievable through cross subsidy to lower-

income households and leveraging other potential means of revenue realisation including revenues from

waste recovery and from recycling / re-use of waste water.

O&M cost trend28

2012 2016 2021 2031 2041

O&M COST

Water Supply 785 1,041 1,528 3,249 7,052

Waste Water Management 869 1,161 1,686 3,679 7,780

SWM 716 981 1,494 3,513 8,360

Toilets 156 204 310 576 1,115

TOTAL 2,526 3,387 5,019 11,018 24,308

Annual Sanitation O&M Cost per capita 879 1,083 1,401 2,339 2,339

Monthly Sanitation O&M Cost per capita 73 90 117 195 195

Monthly O&M cost per household 366 451 584 975 975

26

Based on SLB findings. IMaCS analysis of financials of MCT suggest that that Cost recovery figures may be even lower at 49% and 46%

respectively for Water and sewerage respectively and hence need to be validated further. 27

Capital costs except in case of SWM, are computed on normative estimates and require validation during preparation of DPRs. In SWM

capital costs have been taken from DPR already prepared and under review by MCT. 28

Estimates based on normative costs. Computation details provided under respective chapters in the CSP.



4. Even though the potential for investment-led PPPs (without grant support) is limited in sanitation sector

particularly in the context of MCT’s finances, there is scope to leverage PPPs with service efficiency focus

for provision of Public Toilets, and in managing Solid Waste transportation, processing and landfill and in

the medium term in water supply.

5. MCT should implement user charges in SWM and rationalise tariffs in all sanitation services including

water supply and sewerage to meet its reform commitment of 100% O&M cost recovery.

6. MCT should implement specific actions recommended in the CSP to improve penetration of water and

sewerage connections, cost recovery and collection efficiency and levy of user chargesConclusion

The City Sanitation Plan for MCT is a useful starting point to escalate attention to the ‘important yet often neglected area’ of sanitation and presents a comprehensive snapshot of the issues and imperatives for

sanitation within MCT. It also outlines a possible prioritisation of the above actions needed along short,

medium and long term towards achieving the NUSP goal of universal equitable access to sanitation.

MCT should work with the Government of Andhra Pradesh and MOUD to initiate the steps needed to

implement the actions recommended in the CSP. A Committee comprising representatives from MCT, GoAP

and the CTF could be formed to steer implementation. As envisaged in the NUSP, a CTF has been formed as

part of the preparation of the CSP and it provides a useful platform to engage with public stakeholders and

mobilise public support and participation during the implementation phase of the CSP.

municipal corporation of tirupati - sswm · giz-asem municipal corporation of tirupati

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